December 20, 2018
France, the United Kingdom, and the Free and Open Indo-
Pacific (FOIP): Issues for Congress
Successive U.S. Administrations have sought to bring
States’ Defense Strategy in the Indo-Pacific and determine
European allies into a range of strategic initiatives in the
if the United States is working effectively with like-minded
Indo-Pacific region. In recent years, some European
nations, such as France and the United Kingdom, to
nations, particularly France and the United Kingdom (UK),
advance shared values and interests in the region.
have deepened their strategic posture in Asia. An increased
European presence in the region unfolds against a backdrop
France
of concerns held by many in Asia about China and the
France has long been engaged in the Indo-Pacific region,
sustainability of the U.S. commitment to the region.
but its defense relations appear to be deepening, possibly
Congress may consider the evolving role of France and the
due to concerns about China’s growing influence. It is
UK in the Indo-Pacific as it exercises oversight of the
maintaining existing ties with its territories in the South
Trump Administration’s Free and Open Indo-Pacific
Pacific and the Indian Ocean while developing strategic
Strategy (FOIP) strategy.
relations with key regional states including India, Australia,
Japan, and Vietnam. In July 2018, the French government
Although both countries remain relatively modest powers in
adopted plans under which annual defense spending would
the region, a growing French and British presence in the
increase until France reaches NATO’s defense-spending
Indo-Pacific can act to support U.S. interests. Through their
target of 2% of GDP in 2025. France’s defense budget in
strategic relations, arms sales, and military-to-military
2018 increased by 5% to €34.2 billion (approximately $39
relationships France and the UK have the ability to
billion), equivalent to about 1.8% of GDP. By comparison,
strengthen the defense capabilities of regional states and
UK defense spending in 2017/18 grew by 1.7% to reach
help shape the regional balance of power. Thus far, no
£36 (approximately $45.4 billion), which represents 2.1%
European state, including the UK or France, has formally
of GDP. French President Emmanuel Macron has stated:
endorsed the Trump Administration’s FOIP strategy.
I believe in this Indo-Pacific axis, I believe in this
The Trump Administration’s National Defense Strategy
new strategy which we will have to have at the heart
emphasizes the need to “Strengthen Alliances and Attract
of our collective ambitions, and it is above all a
New Partners.” In addressing the need to “expand Indo-
geopolitical ambition.… It is the one which will
Pacific alliances and partnerships” the document states,
allow us to build on a geopolitical level the
“We will strengthen our alliances and partnerships in the
neutrality of the Indo-Pacific space. From the Horn
Indo-Pacific to a networked security architecture capable of
of Africa to the Americas it will allow us and our
deterring aggression, maintaining stability, and ensuring
allies to take part in this great equilibrium and
free access to common domains … to preserve the free and
ensure the freedom of navigation across the seas
open international system.” In testimony before the Senate
France has extensive interests in the Indo-Pacific region.
Foreign Relations Committee, Assistant Secretary of
These include 1.5 million French citizens living in French
Defense Randall Schriver observed that, “We are stepping
Indo-Pacific territories and an extensive exclusive
up our engagement with European and NATO allies, such
economic zone (EEZ) of 9 million square kilometers,
as the United Kingdom, France and Canada, with whom we
derived from those territories. France has regional military
share enduring interests in the Indo-Pacific region.”
installations in its territories as well as in Djibouti and the
UAE and reportedly sends its warships into the South China
In recent years, France and the UK have developed their
Sea three to five times a year. France is part of the FRANZ
strategic posture in the Indo-Pacific and are networking
Arrangement with Australia and New Zealand and is a
with like-minded Indo-Pacific nations to bolster regional
member of the Quadrilateral Defense Coordination Group
stability and help preserve the norms of the international
with Australia, New Zealand, and the United States.
system. These efforts reinforce the United States’ goal of
maintaining regional stability by strengthening a collective
The French Territory of New Caledonia, which voted to
deterrent to challenges to international security norms. Such
remain part of France in a November 4, 2018, referendum,
challenges include China’s construction and militarization
has a population of approximately 270,000 and 25% of the
of several artificial islands in the South China Sea, its
world’s nickel reserves. In the lead-up to the referendum,
increasingly aggressive behavior in asserting its maritime
President Macron stated “in this part of the globe China is
claims, and the extension of PLA Navy patrols into the
building its hegemony … we have to work with China …
Indian Ocean Region.
But if don't organize ourselves, it will soon be a hegemony
which will reduce our liberties, our opportunities which we
Congress, in exercising its oversight role, may examine the
Trump Administration’s efforts to implement the United
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France, the United Kingdom, and the Free and Open Indo-Pacific (FOIP): Issues for Congress
will suffer.” It is also reported that Macron is planning on
Queen Elizabeth and HMS Prince of Wales. It is reported
organizing a meeting of Pacific island nations in 2019.
that HMS Queen Elizabeth could be deployed to the Pacific
soon after entering active service in 2020, where it may
France and India expanded their strategic partnership
operate alongside Australian naval ships. In August 2018,
during Macron’s March 2018 visit to India. India and
the HMS Albion sailed near the disputed Paracel Islands—
France have agreed to hold biannual summits, signed an
waters that China considers its territorial seas. A Royal
Agreement Regarding the Provision of Reciprocal Logistics
Navy spokesman stated that “HMS Albion exercised her
Support, and “agreed to deepen and strengthen the bilateral
rights for freedom of navigation in full compliance with
ties based on shared principles and values of democracy,
international law and norms.” China strongly protested the
freedom, rule of law and respect for human rights.” Among
operation, describing it as a provocation. In August 2017,
other agreements, the two nations issued a Joint Strategic
UK Prime Minister Theresa May and Japanese Prime
Vision of India-France Cooperation in the Indian Ocean
Minister Abe agreed on a Joint Declaration on Security
Region which states “France and India have shared
Cooperation pledging to enhance the two countries’ global
concerns with regard to the emerging challenges in the
security partnership. The two nations also hold regular
Indian Ocean Region.” India signed a deal with France to
Foreign and Defense Ministerial Meetings. British Foreign
purchase 36 Dassault Rafale multi-role fighter aircraft in
Secretary Jeremy Hunt met with Japanese Foreign Minister
2016 for an estimated $8.7 billion. Delivery of the aircraft
Taro Kono in Tokyo in September 2018 and Kono
is expected to begin in 2019. France and India also hold the
welcomed the further presence of the UK in the Indo-
annual Varuna naval exercise.
Pacific region. In September 2018, the HMS Argyll and
Japan’s largest warship, the Kaga helicopter carrier, held
France is also developing its bilateral strategic and defense
exercises in the Indian Ocean. In October 2018, the UK and
relationships with Australia, Japan, and Vietnam. While
Japan held a joint army exercise in central Japan.
visiting Australia in May 2018, Macron stated that he
wanted to create a “strong Indo-Pacific axis to build on our
The UK has Commonwealth ties to numerous states across
economic interests as well as our security interests.”
the Indo-Pacific littoral. UK forces participate in annual
Several agreements were signed during Macron’s visit to
exercises of the Five Power Defence Arrangement (FPDA),
Australia, and Australia and France agreed to work together
a regional security group of Australia, Malaysia, New
on cyberterrorism and defense. French company DCNS was
Zealand, Singapore, and the UK that was established in
previously awarded an estimated $36.3 billion contract to
1971. The UK also has a battalion of Gurkha infantry based
build 12 submarines for Australia. Australia and France
in Brunei. The UK is reportedly opening new High
held their inaugural Defense Ministers meeting in
Commissions in Vanuatu, Tonga, and Samoa in 2019, and
September 2018. French President Macron and Japanese
Defence Secretary Williamson and Singapore Minister for
Prime Minister Abe agreed to increase their cooperation to
Defence Ng Eng Hen signed a new Defence Cooperation
promote stability in the Indo-Pacific during Abe’s visit to
Memorandum of Understanding on the sideline of the 2018
France in October 2018. France and its former colony
Shangri-La Dialogue. In 2013, Australia and the UK signed
Vietnam signed a Defense Cooperation Pact in 2009, and
a new Defence and Security Cooperation Treaty that
upgraded relations to a Strategic Partnership in 2013. A
provides an enhanced framework for bilateral defense
detachment of French aircraft visited Vietnam in August
cooperation. The treaty builds on longstanding defense
2018 after taking part in exercise Pitch Black in Australia.
cooperation through the FPDA and intelligence cooperation
through the Five Eyes group that also includes Canada,
The United Kingdom
New Zealand, and the United States. Australia has signed
The UK also appears to be shifting its external focus to
an agreement with UK defense contractor BAE Systems to
place relatively more emphasis on the Indo-Pacific. The
purchase nine new Type 26 frigates in a deal worth an
UK’s pending withdrawal from the European Union
estimated $25 billion.
(“Brexit”) may drive it to seek expanded trade relations in
the Indo-Pacific region. Speaking to the Shangri La
Observations
Dialogue in Singapore in 2018, UK Secretary of State for
Alongside indications of the UK’s increasing focus on the
Defence Gavin Williamson stated:
region, observers also note that resource constraints and
competing priorities could limit the degree to which the UK
Standing united with allies is the most effective way
reengages with the Indo-Pacific. Bilateral cooperation, such
to counter the intensifying threats we face from
as the participation of UK forces in France’s 2018 Jeanne
countries that don’t respect international rules.
d’Arc naval operation, could potentially develop into a
Together with our friends and partners we will work
platform whereby other European countries might become
on a more strategic and multinational approach to
more engaged in the Indo-Pacific. At the same time,
the Indian Ocean region—focusing on security,
regional states may view a more engaged Europe as a
stability and environmental sustainability to protect
potential alternative to the U.S. as they hedge against a
our shared prosperity.
rising China and uncertain U.S. leadership in the region.
In 2018, three Royal Navy ships were deployed to the Indo-
Pacific region: the HMS Albion, a 22,000 ton amphibious
Bruce Vaughn, Specialist in Asian Affairs
assault ship with a contingent of Royal Marines, and the
Derek E. Mix, Analyst in European Affairs
frigates HMS Sutherland and HMS Argyll. In April 2018,
Paul Belkin, Analyst in European Affairs
the UK opened a new naval support facility in Bahrain that
IF11052
will be capable of supporting the new aircraft carriers HMS
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France, the United Kingdom, and the Free and Open Indo-Pacific (FOIP): Issues for Congress


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